USA > New York > New York City > Old New York : a journal relating to the history and antiquities of New York City, Vol. II > Part 38
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N
brobet beis
407
Appraiser of the Port of New York.
and was to provide at the publie expense, and with the approba- tion of the principal officer of the Treasury Department, store- houses for the safe keeping of such goods, and such scales, weights, and measures as might be necessary. These duties he exercised to some extent conjointly with the Naval Officer, but the Surveyor had also powers in respect to spirits, and he superintended all in- spectors, weighers, measurers and gangers. Substantially the Custom House was regulated as it is now. The Collector of the Port of New York, in 1784, after the evacuation, was Gen. John Lamb, who owed his appointment to the Governor and Council, resigning his seat in the Assembly for that purpose. When Washington became President he renominated Lamb for the same office, which he held till shortly before his death, the 31st of May, 1800.
For many years the importance of the Appraiser's office does not seem to have been appreciated. The total staff of the cus- toms in 1786 was thirteen persons, John Lasher being surveyor and searcher. In 1827 the total was twenty-eight. The Appraiser's stores were at the corner of Broad street and Exchange place at this date, but by 1836 they were at 17 Nassau street. By the act of 1823, the Appraisers were made presidential offices, two then being created. Subsequently their number was enlarged. It was not till 1866 that the office was organized on its present footing.
In 1851 the Appraiser was Matthias B. Edgar, and there were two other Appraisers, and five assistant Appraisers, and the duties were discharged both in the building at the rear of the Custom House, the present Sub-Treasury, and on Broadway at the corner of Exchange place. Later this latter was the sole warehouse. The Custom House was turned into a Sub-Treasury, and the old Mer- chants' Exchange became the Custom House at the beginning of the war, and shortly after, owing to a change in the tariff and to an increased amount of importations, the office of Appraiser be- came much more important than it had been. No correct idea of the magnitude of the business done by Mr. Cooper, the present Appraiser, and his assistants, can be formed that does not rest itself upon the one idea that the current of inflowing foreign goods, in- cluding all that is worn, eaten, used for ornament, or applied in
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-ad Toal
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Appraiser of the Port of New York.
machinery and heavy goods, comes through this block of land on Washington street. It is the gateway of the New World which admits the products of the Old. Both free goods and those that are taxed pass through it. Its importance is far beyond that of a similar office in London, Liverpool, Paris, Frankfort, or Ham- burg, because in the countries where these are no one city has so complete a monopoly of the business, and in none is so large a revenue collected from importations. Paris is not a seaport, Lon- don and Liverpool are practically under free trade, and the other cities of Europe are not to be compared, either in quantity of business generally, or in the amount collected by the custom offi- cers, with this. What is received here of dutiable goods averages a million of dollars in a day, and some days the amount runs up to two or three times that sum.
The building in which this business is carried on is entered at the southwest corner of Laight and Greenwich streets. At the door is a watchman whose duty it is to see that nothing passes out without the proper authorization. Ascending a short flight of stairs and turning to the left the anteroom to Mr. Cooper's office is found, and passing through this and the office of the chief clerk, Mr. Rufus Rose, his own room is reached. A desk is at one side for his private secretary, Mr. Bassett, while the Appraiser himself sits at a great desk in the centre. The room is comforta- bly furnished, but plainly, far more plainly than the head of a business corporation doing as much in five years as this does in one day thinks is necessary. The same plainness and lack of ostentation is everywhere. There is nowhere in the building any- thing expensive, nothing that will compare with the office of the Secretary of State at Washington, or the Governor at Albany. In this respect the Government has been very parsimonious. Upon the ability and integrity of this official and his ten assistants depend the revenues of the United States, yet there are hundreds of petty brokers in Wall street and below who are much better provided for.
An importation of goods here has to go through many forms. When a foreign merchant sends a quantity here, say enough to fill one box, he must first prepare invoices showing the actual value, and must then swear to them before the United States Consul in
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Appraiser of the Port of New York. 409
his neighborhood. The goods arrive by steamship ; the captain declares what his vessel contains, the invoice has been sent by a broker to the Custom House, the importer swears to the value, and the box has been taken to the Appraiser's warehouse. Previous to this time the actual custody has been in the hands of the Collector, who is charged with its reception and turning over. The invoices, after having passed through the hands of the Custom House offi- cials, are sent up to the Appraiser, the chief of the Invoice Bureau distributing them to the heads of each of the departments, the assistant appraisers. Perhaps the invoice may contain goods of several classes, in which case the one who has first examined and verified them, so far as his own goods go, passes them to another. The duty of the Appraiser is to examine the actual goods, find out what they are, and state the rate of duty upon them, with their value. This is determined by name, by fineness, by cost of raw material, by beauty, and by a hundred other things. Take for instance cigar cases and pocket books. A large pocket book can very easily contain cigars, and frequently does do so, while there is a class of goods made abroad which can be used interchangeably for either. If it is plainly inapplicable for cigars, as for instance is found in nearly every kind that a lady uses, it is thirty-five per cent., as a manufacture of leather ; but if it is a smoker's article, the duty is seventy per cent. This is a case where a name and use affect value. In embroidery the amount of work and its beauty deter- mines the value, as it is plain that what has taken a woman a month at a dollar a day to make is much more valuable than what has taken another woman a week at fifty cents a day, although the same materials were used, and the goods present the same general appearance. This determination requires a knowledge of the mar- ket and of the methods of manufacture. Another kind of goods is where cotton, silk, or wool are intermixed with threads of greater or less thickness. On cotton cloth exceeding 150 threads to the inch, but not exceeding 200, the duty is 40 per cent., but if it exceeds this, the duty is 45 per cent. Thus a microscope is required, and if there is silk in the cloth one of very high power is required, because then the duty changes again.
It is not enough, therefore, to have a general knowledge of merchandise, or even a good one of some particular branch ; there
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Appraiser of the Port of New York
must be technical skill enough to ascertain the real value of the goods, its process of manufacture, and its value. Articles very similar are widely different in the view of the Government, and the appraisers must know absolutely what they are handling. To make a greater certainty of the matter, each assistant appraiser is assigned a different line of goods to examine, which go to him and to nobody else. The assignments to the assistants are made solely on the score of convenience, and not by the uses to which the articles are put, or the substances of which they are made. It is true that in most departments there is some one predominating subject, as in Division No. 10, wines and groceries, and in Divis- ion No. 7, drugs. But a skeleton or a surgeon's scalpel would come to the latter, and to the former, fireworks, which can neither be eaten nor drank. Some such arbitrary method of division must be adopted, as there are nearly a hundred thousand articles known to commerce, hardware alone having four or five thousand, and drugs as many. It would be impracticable to make a scientific division, as in libraries the shelves and alcoves are marked off to subjects. Everything must be looked at, free or not. The box which apparently contains old pewter and Britannia metal may in reality have dirty silver, and a box of cut tacks may have inside of it fine cutlery. Everything therefore, except passengers' personal baggage, must go through the form of invoice, and everything must be examined. To send home a corpse from Paris requires official papers, and the officers must be satisfied on this, as well as on all other matters. The exempted articles by bulk in the late tariff were supposed to be about thirty per cent .; by the new they are fifty per cent. Yet the exemption will scarcely lessen the labors in the appraiser's stores. As before, each box, barrel, pack- age or hogshead must be scrutinized, when there is any reason so to do, and at least one in ten must be opened, and the contents turned over, as a matter of form, if nothing else.
As the invoices come in from the Custom House they are checked, examined to see whether they are in proper form, entered according to number, port, consignee, and shipper, upon the books and then distributed to the various chiefs. Mr. George S. Bruen is the head of this bureau, which is entitled the Invoice Bureau.
blood sals
411
Appraiser of the Port of New York.
"The position requires great accuracy, for this is practically the bookkeeping department of the establishment.
In the first division, over which Mr. Eugene W. Pratt presides with dignity, are chiefly unmanufactured goods. There is no duty upon ice, but that is in this department, as the law contemplates that every article must be placed somewhere. Other unmanu- factured goods are shells, which come chiefly from the East Indies and Africa ; coal, mostly cannel; hoofs, hides, and horns, from South America ; cabinet woods, such as rosewood, mahogany, and French chestnut, the largest part arriving from hot countries ; ivory, from Africa, and ivory nuts, from Central America, the last being largely employed for small work, like buttons, where the real ivory is too expensive ; unmanufactured gutta percha and India rubber, from South America ; guano, from the western coast of South America, and the islands off its coast ; and lumber, from the British provinces. There are, too, in this division many articles which are raw products so far as regards most manufact. ures, but still have had much done to them. Spars are not trunks of trees, nor are rags the primitive condition of cotton and flax ; barrels, casks, and kegs are a necessity, but only to hold other articles, and paper stock requires much manipulation before it comes here. Animals are constantly coming over, both of the blooded and unblooded kinds. The appraising official must see each one. There is a large class of goods for which no rule can be made, except that of the place or the condition in which they are found. Stranded, unclaimed, and derelict goods are among these, as are seizures, sample office packages, and all goods on which allowance is made for damage on the voyage of importa- tion. All these require much pains in examination, and for many of them the invoices are imperfect, giving very little clew to what they are worth, while in some cases they are entirely missing. Other goods in this division are veneering, roofing and sheeting felt, oakum, shooks, and spiling. Personal effects come here, and packed packages, except jewelry, watches and precious stones. The examination of the articles, when there is no special reason for suspicion, is done by opening every tenth package or box. This cannot be followed in personal effects, in regard to which a declara- tion is also taken, nor can it be done with some of the others-
S
Hoit
412
Appraiser of the Port of New York.
Where the invoices seem correct, the articles being packed as usual, and the consignees and consignor being persons of established reputation, the examination of one box in ten is enough, but there are suspicious circumstances sometimes which point to the neces- sity of closer scrutiny. Should this suspicion prove well founded, every package is opened and every part of it thoroughly examined. When it has seemed to be the intent of the shipper to pass the goods through without paying duty, they are forfeited to the Government, and not only the particular box, barrel, or package, but the whole invoice. It is easy to put valuable things in packages otherwise not valuable. Diamonds have been found in cheese, brandies in hogsheads of molasses, dry goods in packages of books, and India shawls in bales of cotton goods. Certain importers and certain shippers who have been involved in shady practices in times past are watched with exceeding care. When under- valuations have been made, it is frequent for the Government to mark up the figures. This happens every day, the shipper relying largely upon the supposed ignorance of the appraiser upon this side. Frequently, however, it is lack of knowledge of the market. In either case, the prices are changed so as to conform to what the Government believes to be right. Until lately, when a dispute arose between the importer and the Government, the question was referred to a jury of merchant appraisers, but by a late enactment, disputes of this kind are decided by a permanent board of customs officials, nine in number, whose opinions are final. All of them should be experts in the customs law, and know the articles and former precedents.
The next division in order is the second, generally known and designated as the jewelry and art division, the head of which is assistant appraiser Cyrus A. Stevens, who is also the deputy appraiser, and acts for the Appraiser in his absence. Mr. Stevens was for many years a well known dealer in jewelry and works of art in this city. His experience as a customs officer in the Appraiser's Department at this port extends over a period of sixteen years. His services were solicited, and the recom- mendation for his appointment made by Hon. Wm. A. Darling, when Appraiser at this port. He was appointed to his present position of assistant appraiser by President Arthur.
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Appraiser of the Port of New York.
The merchandise examined and appraised in Mr. Stevens' division is the product of every country on the globe, and consists in part of the following named articles, to wit: Diamonds, rubies, emeralds, pearls and all other precious stones and imitations there- of ; jewelry, watches, all manufactures of gold, silver and pla- tinum; clocks, bronzes, cabinets of coins, medals, and all other varieties of antiquities, statuary of marble, bronze, alabaster and other materials ; paintings and works of art of all kinds; china, earthen and glass ware of all kinds; philosophical, scientific and optical instruments and apparatus of all kinds; Japanese and Chinese manufactures of all kinds ; household and cabinet furni- ture ; musical instruments ; smokers' articles ; fans and fancy articles of all kinds ; skins, dressed and finished, and all manu- factures of leather; mirrors, plate and cylinder glass and all manufactures thereof.
It should be understood that there are many varieties in style, quality and finish of each of the numerous classes of merchandise above named, and that these conditions multiply the changes in cost of production and consequently the market value in the country of production. It is, therefore, necessary that the ap- praising officer should know and understand all these various con- ditions in order to properly appraise and classify these goods under the various provisions of the law.
The law provides that the year 1700 shall mark the dividing line between the ancient and modern. Articles produced prior to the above named date are admitted free of duty. It is therefore important that the officer who examines articles claimed to be antiquities should understand the various conditions incident to the production of such articles. For example, he should know the country of production ; the period in which the articles first came into existence ; the style of form, decoration and finish which ex- isted at certain periods, and under certain rulers in European and Oriental countries ; and also, the government marks denoting the periods of production of the various articles. Moreover it is necessary that he should be an expert of such experience as to be able to detect copies or forgeries of articles of ancient origin which are now being constantly produced and sold in foreign countries as antiquities. Indeed it is stated that not more than five per cent.
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Appraiser of the Port of New York ..
of the articles claimed by importers to be of antique origin are, in fact. such. Hence it will be seen that it is highly important that the Government should secure the services of men who by long experience and constant study are qualified to handle such articles and arrive at an intelligent conclusion both as to the period of their production and their correct market value.
Within the past two or three years the interest of connoisseurs and collectors of valuable paintings has been directed largely to works of the old masters, and many rare specimens of some of the most celebrated artists, such as Rembrandt, Van Dyke, Dürer, Goyen, Van der Neer, Holz, Paul Potter, Van Ostade, Berghem, Van der Valdes and others of the old school who did their work prior to the year 1700, have been imported to this country during the above named time.
It is a well known fact that the works of these great artists were during their lives, and have been ever since largely copied, in some instances with very good and in others with very poor success, according to the skill of the painter. And in many in- stances it is found almost impossible to detect any difference be- tween the artistic merit of the original and its counterfeit. It therefore requires not only a knowledge of the subjects of the paintings and the peculiar methods employed in treating them by the old masters, but, also, an experience which can distinguish the original from the copy.
The foregoing remarks regarding the works of the old masters also apply to the works of popular artists of modern times, which are dutiable at 15 per cent. ad valorem ; and it is absolutely nec- essary that the correct market value of all modern works of art should be correctly estimated in order that the interests of the revenue may not suffer ; and to this end the officer should know the merit, reputation and popular demand existing for the works of all the various modern artists living and dead in order to be able to appraise them understandingly. The same general con- dition exists with regard to many lines of imported merchandise. The manufacturer whose name has become popular by reason of the character and quality of the articles produced by him is able to place his products on the market at a much higher price than a manufacturer of unknown reputation who produces an equally
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Appraiser of the Port of New York.
good article of the same kind. This applies to watches, clocks, decorated porcelain, bronzes, furniture, musical instruments, fans, scientific instruments, cameras, intaglios, books, engravings, and. many other imported articles which are returned for duty. The decision of all questions regarding these articles devolves upon Mr. Stevens.
One of the most considerable articles of modern commerce is that included in the Third Division, of which Mr. Marshall J .. Corbett is at the head. This is silk, an article unknown to the Greeks at the dawn of history, but with which the Romans be- came acquainted about the time of the downfall of the Republic. It was slow, however, in making itself known, for Queen Eliza- beth had worn linen and woolen hose until she became " of a certain age," when she first met with silk stockings, and resolved that she would in future wear no other kind. Silk now forms the universal material for women's garments of luxury, either by itself, or united with cotton, wool, or linen. Unfortunately the United States have not been able to raise their own silk. Sixty years ago it was believed that we could, but time has since shown that we were wrong. We have, however, been very success- ful in manufacturing it, especially those firm and rich fabrics that old ladies of wealth delight to wear. In light and flimsy goods we are still inferior to the old world. We receive from France and Italy the raw silk necessary for our manufactures, which are here converted, chiefly in Paterson and in Connecticut, into cloths, but we have from the whole of the South of Europe west of the Adriatic a great variety of dress and fancy goods which are wholly or partly of this material. China, Japan, and India also give us much. Mr. Cooper's assistant here, Mr. Corbett, has a great deal to do in determining the classification and value of the articles which come under his charge. There is perhaps no other kind of goods in which deception is so easy, or in which the methods adopted to make the fabric present a novelty are so numerous. The silk is made heavy with dyes, or stiff with starch and other gummy substances ; jute, which has a shining fibre, is mixed with it, particularly in what is known as raw silk goods ; it is made into worsted ; it is woven so that a pile shall project on one or both sides; medallions and pictures of all kinds are
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Appraiser of the Port of New York.
woven in, and it is watered or crinkled after being made. Much that is showiest is worth very little, while some of the quietest and most demure looking goods are the most valuable. There is no art of adulteration or of falsification that is not known to the foreign maker of silks. Our Government places the duty upon the actual value, and not upon the showy appearance. Every case of these, and not one in ten, must be thoroughly ex- amined. The other articles here besides silk are covered stuff buttons, button material, braid except straw, embroideries, fichus, lace and lace goods, perhaps wrought in the cellars of Belgium, and trimmings.
In the Fourth Division are to be found bagging, used chiefly as a covering for coffee, spices, dry fruits, etc .; cotton white goods and dress goods ; webbing and binding; cotton curtain holders; manufactures of gutta percha, India rubber, webbing, cloth and waterproof garments; linens of all descriptions ; various manu- factures of cotton, hemp, jute, flax or grass, or of which these products are the chief components (excepting carpets, carpeting, oilcloth, mats and matting) ; ladies' linen and cotton wearing apparel ; lace curtains, tidies and net ; mosquito netting; cotton and linen tape ; twine, rope and cordage ; hemp or grass school bags; linen and cotton thread and twine. This division is under the control of George N. Birdsall. It is one of great importance. As will be seen, these articles are chiefly of dry goods, of which New York is the great distributing centre of America. It is the largest trade here. Many attempts have been made to estimate the value of the sales of the metropolis in this line, but it has always proved too difficult to calculate. This division, with the third, fifth and sixth, all have dry goods and its related articles in charge. The activity of foreign manufacturers is very great, and they are continually bringing forward new articles, requiring , great skill on the part of the appraiser to distinguish them in the way the law directs.
The Fifth Division comprises corsets and corset laces, largely im- ported from Germany ; gloves, chiefly French ; hair braids from Northern Europe ; crude and ornamental feathers from the tropics ; bunting ; artificial and natural flowers, dyed and dried ; hats, bon- nets and hoods; millinery goods from France mostly ;. hosiery ;
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Appraiser of the Port of New York.
knit goods of every description ; parasols ; regalias ; straw braids ; worsted wearing apparel for ladies; worsted goods of all sorts ; umbrellas, chiefly from Great Britain and France; worsted and woolen shawls and woolen yarn. General Denis F. Burke, assist- ant appraiser, presides over this important division. The method of examination in these goods, as well as in all articles that are worn upon the person, is alike. The boxes must be opened, the goods taken out and examined, the qualities compared, and the rate of duty ascertained. The goods are then replaced, and the boxes or packages fastened up again. Whether this shall be done for one in ten, or one in three, or for every box, depends upon the goods and the discretion of the appraiser.
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